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The end of the Cold War and the emergence of newly independent states in eastern Europe have the potential to enlarge dramatically the family of nations now committed to the pursuit of democratic institutions, the expansion of free markets, the peaceful settlement of conflict and the promotion of collective security. For the sake of both its interests and its ideals, the United States has a special responsibility to nurture and promote these core values. As the president made clear in his State of the Union address, much of the Clinton Administration’s foreign policy is devoted to that effort.

At the same time, our policy must face the reality of recalcitrant and outlaw states that not only choose to remain outside the family but also assault its basic values. There are few "backlash" states: Cuba, North Korea, Iran, Iraq and Libya. For now they lack the resources of a superpower, which would enable them to seriously threaten the democratic order being created around them. Nevertheless, their behavior is often aggressive and defiant. The ties between them are growing as they seek to thwart or quarantine themselves from a global trend to which they seem incapable of adapting.

These backlash states have some common characteristics. Ruled by cliques that control power through coercion, they suppress basic human rights and promote radical ideologies. While their political systems vary, their leaders share a common antipathy toward popular participation that might undermine the existing regimes. These nations exhibit a chronic inability to engage constructively with the outside world, and they do not function effectively in alliances, even with those like-minded. They are often on the defensive, increasingly criticized and targeted with sanctions in international forums.

Finally, they share a siege mentality. Accordingly, they are embarked on ambitious and costly military programs, especially in weapons of mass destruction (WMD) and missile delivery systems, in a misguided quest for a great equalizer to protect their regimes or advance their purposes abroad.